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THE 



U. S. Shipping Act of June, 1872, 



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ITS ADMINISTRATION IN THE PORT OP NEW YORK. 



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AN INQUIRY IN REGARD TO THE SHIPPING LAW AND 
ITS ADMINISTRATION IN THE PORJP OF NEW YORJC 



REPORT 



OF 



A SPECIAL COMMITTEE OF THE TRUSTEES 



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OF THE 



met[kmt mwaimii jxwd Jwttdji 



APPOINTED UNDER A RESOLUTION" OF 



November 26, 1873. 



PRESENTED TO THE BOARD AND UNANIMOUSLY ADOPTED 



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January 19, 1874. 







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t> NEW YORK: 

Hallet & Breen, Printers, 60 Fulton Street. 

1874. . 



REPORT 



Laws for the protection of seamen and especially intended 
to regulate their shipment and discharge existed in other 
leading maritime nations long prior to any attempt to legis- 
late on the subject in this country. 

These laws, while they secured peculiar advantages for 
seamen of other nationalities, operated to the demoralization 
of American seamen, by forcing upon their companionship, 
the refuse bad classes that could not be employed under the 
protective legislation of the countries where they severally 
belonged. 

Largely from this cause, a condition of things had grown 
up in our chief sea-ports, that was fearful to contemplate, 
and under which, combining with other causes, the com- 
merce of the country was manifestly suffering. 

Seamen were bought, sold, and delivered like cattle. They 
were frequently shipped against their knowledge or their 
will. Their services were disposed of at rates about which 
they had little, if anything, to say. They were often cheated 
and robbed of their wages, and were otherwise personally 
abused, alike on shipboard and on shore, and with no power 
of redress. They were the victims of designing, bad men, 
who, to get hold of their earnings, would tempt and de- 
bauch them, and who would also use them, sometimes singly 
and sometimes in combination, against the interests of ship 
owners and masters ; and in manifold other ways they were 
reduced to a practical vassalage which disheartened and 
rendered them ugly, and made the calling of the sailor hated 
and a by- word, and the presence of the sailor a common dread. 



Eespectable men engaged in commercial pursuits, philan- 
thropists and others, saw all this and would gladly have had 
it otherwise, but rather than come into contact with the des- 
perate classes, and embroil themselves in a strife that seemed 
well-nigh hopeless, they accepted the existing condition, 
making only local but not serious general effort against it, 
until the legislation known as the United States Shipping 
Act, which, passing both Houses of the 42nd Congress, was 
signed by the President, the 6th of June, 1872. 

The original draught of this law came from the hand of 
an eminent jurist, of honored name in the city of San Fran- 
cisco, where the abuses of seamen were so flagrant and out- 
rageous as to excite wide- spread public indignation, and 
suggest the need of some legal interposition to protect them 
in the common rights of manhood and secure to them the 
privileges of citizenship. 

It was modelled, and wisely so, after the Merchant Ser- 
vice Bill of Great Britain, the main features of which seem- 
ed essential to any successful protective legislation in the 
interest of the American sailor. 

When it was matured, and sometime in the year 1869, a 
copy of this draught was forwarded very naturally to the 
Ameeican Seamen's Feiend Society, which, as a national 
institution concerned according to its charter, for the wel- 
fare of seamen, it was only reasonable to suppose would be 
prompt to take part in any movement whatever that prom- 
ised to improve the sailors' condition. It was also accom- 
panied with the request, that if, upon the careful examina- 
tion which was asked for it, the proposed law was approved, 
it should then be submitted to Congress, and its enactment 
solicited in the interest of our national commerce. 

The Special Committee of the Trustees, to whom it was ac- 
cordingly referred, composed of practical men, mostly at 
some time connected with the sea, either as merchants or 
masters of vessels, and already themselves intelligent upon 
the subject, deliberately sought by conference with others in- 
terested in the matter, and in consultation with eminent legal 
counsel, to perfect the proposed measure. In due time, their 



5 

report being favorable, it was by a unanimous vote of the 
Trustees, endorsed and sent on to Washington, accompanied 
by sundry petitions, among others from the Chamber of Com- 
merce and the Board of Trade, asking for its Congressional 
enactment. 

Able and earnest advocates, seeing its importance and 
humanity, took it in hand at once. It was first considered 
in the Senate, and upon the recommendation of the Com- 
mittee on Commerce, passed that body without a dissenting 
voice, but owing to the great mass of business that preceded 
it, its order was not reached in the lower House before the 
day of final adjournment. 

Early in the next Congress it was introduced in the House, 
where it was fully and deliberately discussed, and passing 
that body with some unimportant amendments, it was again 
carefully considered and approved by the Senate, receiving 
the signature of the President also, to take effect the follow- 
ing August. 

In the last Session of the late Congress, legislation was 
had, asked for in behalf of certain sectional interests, but 
the amendments thus obtained, do not, under a recent deci- 
sion of the United States District Court, impair its original 
integrity. 

From August, 1872, up to the present time, the law has 
been in. operation in various United States sea-ports of Cus- 
tom, and has been tested under a very great variety of ad- 
ministration and circumstances. And when it is remem- 
bered, that it was an entirely untried measure, proposing 
some very radical changes, particularly in the mode of trans- 
acting the business of shipping and discharging seamen, and 
on this account was calculated to excite the opposition of 
the very worst classes in our sea-faring communities, and 
also that its officials were inexperienced men with difficult 
duties before them, and neither precedents nor decisions to 
guide, the law may be said to have worked with surprising 
success, and, indeed, to have proved its great national and 
commercial importance, in the advantages resulting from it 
alike to seamen and to their employers. 



6 

In the port of New York it early met with organized and 
defiant opposition, on the part of the great majority of the 
boarding-honse keepers, and persons variously connected 
with them ; and everything in their power to command has 
been brought to interfere with its intended usefulness, to 
misrepresent the law, and to render it odious and unpopular. 

Those who have observed it dispassionately seem to ap- 
prove it. There are others who do not. Its bearing conflicts 
with many personal interests, and on this account it is pro- 
nounced by some, unnecessary and expensive, uncalled for 
by the condition of the sailor, and instead of affording 
relief, as really being an embarrassment to commerce. 

Not only has the law been denounced, but its administra- 
tion, also, particularly in the port of New York, has been 
severely criticised, impugning, at least the judgment of 
those who urged its passage, and upon whose recommenda- 
tion the present Commissioner received his appointment. 

Under these circumstances the peculiar relation which the 
American Seamen's Friend Society had heretofore sus- 
tained to the law and its administration, seemed to render it 
not only proper, but a duty also, to inquire about these ob- 
jections and criticisms ; for, plainly, if they are reasonable 
and well-grounded, then the friends of seamen would be 
called upon to take further action in the premises, seeking 
to perfect the law and to have it, if possible, judiciously 
and advantageously executed. 

It was in this view that your Committee were appointed, 
and they entered accordingly on the investigation assigned 
them, by visiting, without notice of their coming, the office 
of the Commissioner, in the Seamen's Exchange, a com- 
modious building, erected by the New York Seamen's 
Association, (a philanthropic institution gratuitously man- 
aged by a Board of Trustees, composed of business men, 
clergymen and ex- sea- captains, and without paid officials), 
and located immediately opposite the Sailors' Home in 
Cherry Street, and in the very centre of that section of the 
city where sailors chiefly congregate. 

Some idea of the magnitude of the business to be transact- 



ed and accomodated here, will be had upon a notice of what 
is required of the United States Shipping Commissioner un- 
der the law of 1872. 

He must have suitable premises wherein to transact the 
business of the Commission. He must afford facilities for 
engaging seamen, and to this end, must among other things, 
keep a register of their names and character. He must su- 
perintend their engagement, and provide means for securing 
the ^presence on ship-board, of men so engaged. He must 
supervise the forms of agreement between masters and crews, 
have them signed in duplicate, besides furnishing a copy 
for the Custom-House, and must certify over his official 
seal, that each man named in said agreement, signed the 
same understandingly, voluntarily and when sober ; and 
must witness the paying of all advance wages to seamen. 
He must also witness the discharge of all seamen in the 
United States from merchant ships engaged in voyages de- 
scribed, and see that they receive their stipulated wages. 
To this end he must inspect the accounts of all seamen pre- 
vious to settlement, and see also that each man gets a certifi- 
cate of discharge, and must keep books for mutual release in 
all cases of discharge and be ready to furnish certified copies 
of the same whenever required, and give each master a state- 
ment of money expended in paying off seamen. He must 
also keep a register of discharged seamen, and a report of 
the conduct, character and qualifications given them on dis- 
charge, and when it is desired by any seaman, he is to give 
him or endorse on his certificate, a copy of so much of said 
report as personally concerns him. 

It is also made his duty to hear and decide any matter of 
difference that may be referred to him, between a master, 
consignee, agent or owner of vessel and any of his crew, 
being authorized to this end, to require (if necessary) mas- 
ters, owners, mates, consignees or crews to appear before him 
and to produce papers and. books. He is also to hear in 
certain cases, complaints from seamen on ship-board. It is 
made the Commissioner' s duty also, to aid in the capture of 
deserters when it is required ; and he is to receive the ef- 



8 

fects of deceased seamen and deserters, and account for the 
same to the United States Circuit Court. 

Besides all this he is to facilitate the apprenticing of boys 
to the sea service, and is to keep a register of all indentures 
of apprenticeship made before him. 

It will readily be seen from this outline of his duties, as pre- 
scribed by the law, that the business of the Commissioner' s 
office, in such a port as New York, would naturally be very 
large, and that to transact it with correctness and despatch, 
would require systematizing and a competent clerical force. 

Your Committee were gratified to find the various depart- 
ments wisely arranged, and the business of the office quiet- 
ly proceeding, in each department, with order and apparent 
satisfaction to the parties concerned. 

The main room of the building is devoted to seamen, who, 
at the time of your Committee' s visit, were present in large 
numbers, some waiting engagements and in conference with 
captains and others about voyages proposed ; some hear- 
ing and signing their articles, and some settling accounts, re- 
ceiving their wages and discharge. 

The books of the office were all opened to inspection, and 
your Committee were allowed the largest liberty to question 
not only the Commissioner himself, but also his deputies 
and other employees, in regard to the mode of conducting 
the general business. 

The statement of the Commissioner as given to your Com- 
mittee in detail, accompanies this Report on paper marked A, 
and is referred to as explaining much of which the public 
has been misinformed, and as setting forth the manner in 
which the steamships and sailing vessels are supplied by 
shipment and re- shipment, and their accounts subsequently 
adjusted, and the discharged men paid off through the 
cashier, whose office, while in the same building, is properly 
kept altogether distinct, and, suggestively, in the adjoining 
Sailors' Savings Bank. 

Your Committee had shown to them also, what is called 
the Register of Deserters as provided for by the law, and its 
important and economizing uses explained. 



9 

Desirous of ascertaining the opinion of others in regard to 
the Shipping Law and its operation, besides those connected 
with the Commissioner's office, your Committee listened 
with interest, to the statement of Capt. Blake of the United 
States Navy, and in charge of the Naval Rendezvous ad- 
joining, in the Seamen's Exchange. His language was, 
" so far as relates to sailors, I consider that the law works 
well. As to the ' personnel ' of the ship, this is true in every 
respect. Here the captain of a vessel has his pick of the 
men. By the old way he rarely, if ever, saw them until 
they were out at sea. The law works badly for the pimps. 
I have yet to find one respectable sailor who says he wants 
the law repealed. As to the names signed to petitions for 
a repeal of the law, said to be names of sailors, they are 
fraudulently obtained, had for a drink. In my judgment 
the law is only too lenient. I would have it amended, so that 
whenever practicable the crews of all outgoing vessels, steam- 
ships particularly, should be shipped long enough before 
sailing, for them to be organized into boats' crews, and ready 
for any emergency." He instanced the Cunard steamers as 
illustrating his idea. 

Capt. Blake gave several instances that came under his 
observation, of sailors being excessively charged by land- 
lords who had brought them for enlistment, one man $16, 
when all that been furnished him was a single cup of coffee ; 
another, but the day before, started from the Brooklyn Navy 
Yard with $47 in his pocket, for the Sailor's Home, and on 

his way, stopped at Mrs. ' s where he was charged $15 

for two drinks. 

Subsequently to their meeting at the Commissioner' s office, 
your Committee held several sessions at the Rooms of the 
Board of Trade, at which they were favored with the pres- 
ence of a number of gentlemen of intelligence and expe- 
rience, entertaining very positive views in regard to the law 
and its administration, who were heard at length, and their 
statements upon the subject recorded for reference. 

An analysis of these statements shows that prior to the 
time when the law went into effect (August, 1872,) the ship- 



10 

ping of seamen in the port of New York had been carried 
on by private enterprise, that about fifty concerns were en- 
gaged in the business, and that while some of them were of 
respectable character, many were managed by men, whose 
only training for it had been as runners for sailor-boarding 
houses of the very lowest character. 

As a consequence of this, the most flagrant enormities 
were practised. When men were plenty, chances had to be 
paid for, and the price for this, known in the street as "blood 
money," cost the sailor a large part of his advance which he 
worked out grudgingly, running away if he could from 
whatever balance remained, at the very first port made, to 
ship again under some different name. If men were scarce, 
then this same extortion was practised on the owner ; land- 
lords and shipping masters combining, and sometimes, as was 
stated, parties sharing in the profits, more or less according 
to the state of the market, but always enough to constitute a 
burden upon the commerce of the country. 

Under the old system, it was also the case, that masters of 
vessels rarely knew what to depend upon, as to the men they 
were to have in their crew, for, as a captain long engaged in 
the China trade stated it, "they were picked out at the 
shipping office, and brought on board, and often, of the 
twenty men ^picked out, not more than two would come, 
in (fit) condition, the rest full of delirium tremens. The first 
thing we had to do after we got out to sea, was to search the 
forecastle for liquor and destroy all they had : this state of 
things I knew for twenty years." Of course detentions in 
the stream, as was stated, were very common, and getting 
ships to sea, an undertaking that could not be counted upon 
with either promptness or certainty. 

As to the comparative cost of shipping men, it has been 
claimed that it was less under the old system than under the 
law, but your Committee are satisfied from the evidence 
produced upon this point, that the claim is unfounded. The 
Commissioner' s fee for shipping is $2 per man ; against 
which one of the most respectable of the old shipping mas- 
ters stated, that his uniform fee was $4 per man, and for 



Rooms of the 
Importers & Grocers Board of Trade, 
74 AVall Street, New York, May 10th, 1873. 



At a regular monthly meeting of thi.s Board, on Wednesday, 
7th inst, the following Preamble and Resolutions were passed unan- 
imously. 

Whereas, Certain charges have recently been published rela- 
tive to alleged mismanagement of the Sailors' Exchange, under the 
administration of Captain C. C. Duncan, U. S. Shipping Commission- 
er, and 

Whereas, He has received the endorsement of the Chamber of 
Commerce and other kindred organizations, also of some of our 
members, who have known him long and intimately: therefore 

Resolved, That the Importers and Grocers Board of Trade 
pledge to him its hearty co-operation and support in this his ear- 
nest battle for the cause of the sailor. 

Resolved, further. That convinced as we are of the honesty, 
sincerity and fearlessness of Captain Duncan, we desire to place 
upon record this our appreciation of the valuable services he is ren- 
dering to the cause of commerce generally and lo the best interests 
of the Port of New York. We therefore ask the merchants of this 
city to extend to him their aid and encouragement 

Win. Neilsom 

Secretary. 



At a meeting of the Chamber of Commerce 
of the State of New York, held May 1st, 1873. 

The following resolution was unanimously adopted: 
Resolved, That in the judgement of this Chamber, the United 
States Commissioner should be encouraged and sustained by the 
mercantile community of this City, in his efforts to execute the law 
known as the Shipping Act of June 7th, 1872. 

Attest— GEORGE WILSON, 

Secretary. 



11 

paying off, $10 for large vessels and $5 for small, the general 
outside shipping price being any where from $2 to $4 accord- 
ing to agreement ; and his books were produced to show 
that several leading commercial houses on South street, 
formerly paid almost, if not quite, 50 per cent more for ship- 
ping their seamen, than they now pay to the U. S. Commis- 
sionerfor the very same service. The evidence of Capt. Gkay 
of the P. M. S. S. Acapulco, and of Capt. Seabuky of the P. 
M. S. S. Granada, while it does not bear upon the cost of 
shipping crews, as that is a matter with which they had 
nothing to do, is very significant upon the general subject, 
and your Committee would refer to it, as showing the im- 
proved condition of things, in almost every respect, especially 
on our steamsliips, since the law went into operation. 

Capt. Jokdan of the ship Rliine (one of Geinnell, Mln- 
tukn" & Co' s vessels) gave it as his opinion that the law is 
good and righteous, and working well, not only for ships, but 
also for the sailor. He said ' ' I have been mate and mas- 
ter for 30 years ; have seen a great deal that was bad in that 
time : since the law went into effect have had no difficulty 
in getting my crews, and having them come on board sobek. 
There is no " shanghaeing ' ' now ; there was much of it in 
the old times. I could mention the name of a shipping-firm 
who allowed this. Once, when I had the Lady Franklin, 
out of twenty-four men that were shipped, I only got four 
that could steer ; as for the rest, they were plumbers, drivers, 
laborers, lime-burners daguerreotype-takers, &c. ; some of 
them could not handle a rope, and I remember that I had to 
poultice their hands when they got blistered. This was one of 
many cases I could name. We are free from all this now. 
The things I have spoken of are merely samples out of many 
cases, say three out of four times when I have sailed from 
New York. As to defects in the law, I have seen none in 
its practical working, not one. Know nothing of any 
trouble with the Commissioner or his deputies ; they are 
polite and courteous." 

Capt. James H. Little of the ship Star of Hope was 
equally decided in his satisfaction with the working of the 



12 

law. "I have shipped seamen (he said) for twenty years 
past, and I prefer to ship them under the new order of 
things." Reference is made to his statement in full. 

It is but just to state that on the other hand Capt. B. E. 
Thurlo w formerly sailing out of this port, but now engaged 
in business in South Street, expressed himself as decidedly 
opposed to the law. He said, "I am opposed to anybody 
taxing me without my consent, and this has been so with 
me from the start since the law went into operation. Take 
my own case. I have been thirty-five years a Captain. I left 
off four years ago. I used to ship my own men from three 
different offices. I have brought up twelve men and made 
them masters and mates. I never paid a man for shipping 
sailors; paid no fee for it. That isn't so now." He sub- 
sequently stated that the shipping master always furnished 
articles. ' ' I used to have some stationary men, to the extent 
of one-half my crews, and the rest were supplied to me 
from the shipping offices. I paid $2 a piece for these. Clark 
& Dea^t used sometimes to give me drunken men, but the 
other offices did not." 

Mr. G. A. Brett, a shipping merchant in South St. was 
likewise decided in his opposition to the law, and admitted 
to your Commitee that he wanted to kill it. He gave it as 
his opinion that the sailor had not been elevated by the law, 
and said that no captain in his employ was in favor of it as 
now administered. He said he once was in favor of the law, 
but had lived long enough to change his mind. He believed 
that he represented nine-tenths of the ship owners of New 
York, and a majority of the sailors. Against this however 
was the testimony of Deputy Jenks, who comes into con- 
tact with probably as many seamen as any man in the port 
of New York, and who said "all good seamen endorse the 
law most heartily." 

The testimony of Capt. Thurlow and Mr. Brett is ap- 
pended to this Report. 

Another evil stated to have measurably ceased under the 
law, was the practise of extorting money from owners by 
what was purely a put up litigation, considerable sums of- 



13 

ten being paid to prevent the arrest of a captain, just when 
his detention would have been a most serious embarrass- 
ment. TJie settlement by the Commissioner of differences 
between masters and crews, as authorized by the law, your 
Committee found to be a daily occurrence, and it was spoken 
of by captains and others, as giving general satisfaction, 
and by a prominent ship-owner and merchant as having 
already effected a very manifest saving in the matter of ex- 
penses. 

As to the general features and operation of the law the 
testimony of Capt. Henky Erben of the U. S. RT. is, on ac- 
count of his world-wide experience and careful observation 
and intelligence eminently valuable. He stated among other 
things, that he entered on his duties at the U. S. Rendezvous 
in the Seamen' s Exchange, prejudiced against the law by ship- 
owners with whom he had talked about it, but he found it 
working well. ' ' I think, (quoting his words) it ought to be 
made more stringent : it ought to take in all the coasting 
trade, and every ship going out of this port into deep 
water." 

He gave your Committee an account of the recent demon- 
stration in the City Hall Park, which he happened to wit- 
ness, and at which Mayor Havemeyee and the Editor of 
the Nautical Gazette made addresses. " There were," said 
Capt. Erben, " about one hundred and fifty men in the pro- 
cession, and I don't believe there were six seamen in the 
lot." He further stated that he had conversed with the ship 
captains in regard to the law and they all admit, that they 
get better men than formerly. His own words were, ' ' so far 
as I can find, there is no real ground for opposition to it." 

Reference is made to his testimony as appended to this 
Report. 

Besides the mass of personal testimony more or less 
favorable to the law itself, important documents bearing up- 
on the subject were laid before your Committee. A very 
large number of testimonials from masters of vessels, sailing 
out of the port of New York, were submitted, expressing 
their satisfaction at having had their men furnished them 



14 

by the Commissioner, and as making no complaint what- 
ever of the law. 

Among these is a letter from Capt. M. B. Ckowell of the 
ship Black Hawk, from which we give an extract as follows : 

" December 24th, 1873. 

* * * * * "I have done business with your office, 
now three times in succession, and have received every at- 
tention and kindness that could be given by all under your 
control, both in shipping and paying off my crews. I have 
not had an hour' s detention, and have had better men, by 
all odds, than under the old regime. * * * * It is a 
great benefit to ship-owners, to ships and to sailors." 

A copy of commendatory resolutions, unanimously adopt- 
ed at a meeting of the Firemen and Coal Passers Associa- 
tion of the Port of New York, was also submitted ; and also 
a report adopted by the New York Ship-Owners Association, 
carefully prepared by a Committee of six, each one of whom 
was especially invited to be present, as some of them were, 
and to express his personal views, as some of them did, up- 
on the particular subject of this inquiry. 

That report, to which further reference will be made, says, 
" In conclusion your Committee are of opinion that the Act 
is on the whole beneficial to the interests of both sailors and 
ship-owners, if properly interpreted and administered in ac- 
cordance with what the Committee believe to have been the 
intention of its framers." It should be said in this connec- 
tion, however, that one of that Committee, in giving his per- 
sonal views on the subject, stated that although he signed that 
report thus commending the Shipping Act, he nevertheless 
was opposed to it, and really both sought and desired its 
repeal. 

The change which that report suggests as to the appoint- 
ment of the Commissioner, proposing to remove the power 
for this, from the United States Courts to the Secretary of 
the Treasury, your Committee cannot but think would al- 
together and immediately change the present non-partisan 
character of the law, (which in all his appointments the 



15 

Commissioner in the port of New York, has studiously 
sought to preserve), and would convert it into an instrument 
for political uses, with no apparent compensating advan- 
tages whatever, a result which every lover of good order and 
friend of seamen might be supposed to deprecate. 

The office of the Commissioner is measurably invested with 
judicial functions, and it seems altogether fitting that the in- 
cumbent be selected not only in view of that fact, but also by 
an authority sympathizing with that feature of the office, 
while at the same time, as under the law, any irregularity 
or malfeasance may be promptly remedied in the manner 
described, by that same authority. 

Nor do your Committee perceive that the appointing power 
being as proposed with the Secretary of the Treasury, should 
he attach the Commissioner' s office to the Custom-House, it 
would be any advantage or improvement whatever. It was 
given them as the opinion of one conversant with the busi- 
ness in all its practical details, that it could not be transacted 
at the Custom House. As for having a Commissioner there 
merely to supervise the shipping of seamen, or to have an 
officer at the Custom-House, where the shipping of seamen 
should be carried forward, it would be impossible. In his 
judgment the Seamen's Exchange was well situated for 
procuring seamen, and on that account was the right j)lace 
for the Commissioner's office. 

The criticism made upon the law, to the effect that it cre- 
ates a monopoly in the business of shipping seamen, and so 
prevents the healthy and useful competition which would 
otherwise exist among shipping masters, is occasioned doubt- 
less by a misapprehension of just what is the Commis- 
sioner' s duty. He is among other things to ' ' superintend 
the engagement and discharge of seamen in manner describ- 
ed." Any man can engage in the shipping business that 
chooses to do so. A captain may provide himself with a 
crew wherever and of whom it pleases him, only providing 
that the Commissioner, both for the sake of seamen and mas- 
ters supervise the engagement and discharge of said crew, 
attending to the articles, advances, settlements, &c, it not 



16 

being required that even the articles or crew list shall be pro- 
cured of the Commissioner, but may be bought of any sta- 
tioner keeping them for sale. 

As it is, captains not infrequently bring their men with 
them to the Commissioner to have them regularly shipped, 
one of his deputies stating that, ' ' a large number shipped 
at the Seamen' s Exchange were brought there by captains 
and mates." 

The result of their inquiry in regard to the law itself, its 
chaeactee and opeeation, has been to satisfy your Commit- 
tee, that by the majority of responsible shipping merchants, 
masters of vessels, sailors, commercial men, and persons of 
careful observation and intelligence, whose opinion is of 
value in the matter, it is held to be not only without seri- 
ous objection, but that it is accepted "as beneficial to both 
sailors and ship owners ;' ' and agreeing with Mr. Mintuen 
when he gave it as his judgment that "the abolition of the 
law would be a misfortune," your Committee are of the 
opinion that its repeal would be generally considered a pub- 
lic calamity. 

The leading opposition to the law comes most naturally 
from those classes who thrived upon the abuses which were 
formerly practised upon seamen and owners ; and now that 
their chances for "blood money " are in a measure cut off, 
they seek, by the repeal of a law that promises in time the 
complete removal of the evil complained of — a repeal for 
which they are making liberal disbursements — to have the 
old system restored, notwithstanding its cost and outrage. 
Others are asking a repeal of the law from considerations of 
a different if no less selfish character, for, as was stated by 
one of the gentlemen before your Committee, himself a ship- 
ping merchant, ' ' the law has interfered with them, and they 
want it out of the way, so that they can go on with their 
business as before." The same gentleman mentioned the case 
of a friend of his who signed a petition against it, and opposed 
the law, simply because a check of his was sent back to 
him from the Commissioner's office in the time of the panic. 
He further stated that, ; ' among the members of the Ship- 



17 

Owner's Association, are those who do think that Captain 
Duncan is arbitrary. Others again, think the law expensive 
to them, some who fail now to receive the sums, anywhere 
from ^ of 1 to 5 per cent, in commissions, which they used to 
get from the shipping masters for the privilege of shipping 
their crews. 

An analysis of a printed list shown to your Committee, 
and said to be the names of ship- owners petitioning for the 
repeal of the law, shows that of the 112 signatures, 48 never 
had any business at the Commissioner' s office as ship own- 
ers, and are believed not to be such ; 13 are ship agents 
merely, and 37 are sliip- owners and agents who, having vio- 
lated the lata, are liable to large penalties, unless the law is 
repealed. There are those, doubtless, who conscientiously 
believe that a repeal of the law is called for, but your Com- 
mittee think that it is because of a misapprehension of its 
intent and requirements ; some probably having been per- 
suaded to consider it a creation of the Commissioner, and 
operated for purely personal ends. 

That the admintstbation of the law in the port of New 
York has been faultless, is not pretended by any. Your 
Committee had heard it severely criticised, and supposed that 
there must be some foundation for what was charged against 
the Commissioner, not only in the rumor of the street, but in 
widely circulated documents and pamphlets, anonymous and 
otherwise, (copies of which were furnished them), and by 
correspondents of certain well-known daily papers, with an 
occasional editorial endorsement. 

To arrive at the truth of this matter, seemed to be impor- 
tant. Persons known to be inimical to the Commissioner 
were accordingly invited to present their side of the case, 
and your Committee, allowing almost unhindered liberty, 
patiently listened to whatever was offered. 

The Commissioner was denounced in their hearing as un- 
fit for the place he occupies, as disobliging, arbitrary, and 
extortionate ; as misconstruing the law ; as in various ways 
exceeding his powers ; as having no higher than a mercenary 



18 

motive in the conduct of his office, and as largely governed 
in making his appointments by family favoritism. 

As to direct charges against Mm, it has been a surprise to 
your Committee to find how comparatively insignificant 
most of them were, such as requiring excessive fee for boat- 
age, and depositing seamen' s advances in the Savings Bank, 
(of which he happened to be the President, without salary) 
a thing, by the way which was never done ; and how sus- 
sceptible of explanation those were, that seemed in anywise 
serious, such as illegally charging for re-shipment, as in the 
case of Capt.THUELOw's brother; refusing certified checks, 
and demanding currency, for deposit of captains, during the 
short time when currency was not to be had by him for or- 
dinary business, except at a premium ; and allowing his out- 
door men to speculate in shipments, when but a single case 
of the kind was ever known, two dollars once being taken 
from a landlord, for which, upon its being proved against 
the man, he was summarily dismissed. 

As with the Committee of the Ship Owners' Association, 
quoting from the second page of their report, " a variety of 
charges of misconduct in office, extortions, &c, were made 
before us, against Capt. Duncan, but none of them were sus- 
tained by the evidence adduced, while several were conclu- 
sively disproved." 

It is in evidence that the general business of the Commis- 
sioner' s office has been transacted with despatch and satis- 
faction, that while the bearing of the Commissioner has been 
decided, it has also been, like that of his deputies, courteous 
and obliging. He has, it is true, employed three of his sons, 
in different departments, but it was simply because they 
were qualified for their work, and were willing to work there, 
at salaries no greater than they could have readily obtained 
elsewhere. It is in evidence in regard to them, that they are 
eminently competent and industrious and acceptable, and 
are sons of which any father may be proud. 

The Commissioner' s chief deputy is one of the most ex- 
perienced shipping masters in the port, having been engaged 
in the business for over thirty years ; another deputy was 



19 

as long engaged in the same calling, while still another was 
himself a shipping master for the Navy prior to the new 
order of things ; all which to your Committee seemed to in- 
dicate the purpose to secure the best help and the largest 
possible efficiency in administering the duties of the office. 

It is enough to say in regard to the charge that the Com- 
missioner has misconstrued the law in certain official requi- 
sitions, that he has been fully sustained therein by the 
Court, not the Court however, that appointed him, as some 
seem to suppose (the U. S. Circuit Court), but by the U. S. 
Court of the Eastern District, Judge Benedict presiding. In 
view of this fact your Committee do not think that any ex- 
ception can reasonably be taken to that part of the Commis- 
sioner' s administration. 

His use of the income of the office to defray the expenses 
of the same, has been thought to be altogether unauthorized. 
Their inquiry as to this has satisfied your Committee, that 
the Commissioner is doing no more than the law requires 
him to do, and that his arrangements for transacting the le- 
gitimate business of shipping and discharging seamen, in 
the chief sea-port of the second commercial nation of the 
world, are no more ample nor expensive, than are actually 
necessary. 

In his application of monies received (and accounted for 
in his official report) your Committee have evidence that he 
has acted under legal advice approved by his Honor Judge 
Woodruef, and as is shown from its history, really in ac- 
cordance with the intention of the law. No other construc- 
tion could logically be put upon it, when its different parts 
are allowed to interpret each other, and when also consider- 
ed as a whole, itself providing an income that shall pay for 
what is required to be done, and foreshadowing in what it 
requires, how its income, and how much of its income, shall 
be applied. It would have been well no doubt, had the law 
been more definitely drawn on this point ; or had the differ- 
ent parts of the law been adjusted to each other, subsequent 
to certain alterations which were made in the original draught, 
as for instance, in the third line of section 3 and in the sec- 



20 

ond line of section 4, striking out the words ' - at his own 
proper cost," and "at his own cost," and inserting after 
" therewith " in the fourth line of section 4, the words " the 
expenses of which and for necessary clerk-hire, shal] be 
taken from the fees." This is suggested, as worthy of con- 
sideration. 

The impression is sought to be produced abroad, that the 
Commissioner is enriching himself from perquisites and fees, 
over and above his specified salary. 

It is in evidence before your Committee, that while for the 
first several months after it was opened, the income of the 
office was in excess of its expenses, upon the withdrawal of 
the West India and California business, it fell under, when 
the Commissioner supplied the deficiency. Since that trade 
has been restored, the current expenses are met by the in- 
come, and a slight payment has been made from month to 
month upon the old deficit. ( 

It still remains however, that up to the close of last year, 
31st December, 1873, after paying the expenses of the office 
there was not balance enough remaining to meet the speci- 
fied salary of the Commissioner by the considerable sum of 
$1,524.46. 

The following interesting statistics for the year 1873, may 
properly accompany this statement. 

Total seamen supplied 16,756 

reshipped 1,798 

" " shipped without advance 7,800 

Total seamen paid off 15,832 

Cash paid into seamen's own hands and while sober, for 

wages due and accruing $1,181,103 17 

" paid into Court for wages of deceased seamen 3,945 10 



Staff in Commissioner's office, December 31s£. 
1 Commissionerj 
6 Deputies, 4 Clerks, 

10 Special Deputies, 7 Out door officers. 

Total fees received $37,831 65 

" fees from coasting trade included above 436 00 

expenses 39,356 11 



21 

It was referred to your Committee, still farther to inquire 
whether any amendments can be suggested, that without 
impairing its integrity will render the law altogether unob- 
jectionable. To inform themselves upon this matter, your 
Committee, very early in the session, made it a point to ask 
from the various parties and interests that were represented 
before them, for any objections they had to the law, and also 
requested that if objections were known to be entertained by 
others, they should be frankly and fully stated. 

The result has been, that probably everything that could 
be reasonably offered against it, has been presented and in 
the strongest manner possible ; while various propositions 
have been submitted, which doubtless were honestly thought 
would serve to improve the law and enhance its usefulness. 

Some were for extending, some for diminishing its range 
of operation. Some were for making it more stringent, 
others were for making it less so. Some related to certain 
important and essential features of the law itself, some to 
the mode and cost of its administration, and some simply to 
certain matters of personal convenience. 

Your Committee are by no means prepared to say that the 
law is free from defects, and is not capable of improvement, 
but it is clear to them that as yet there is no such sufficient 
agreement, even among good, intelligent men, friends of 
seamen, and lovers of order, about what will improve the 
law, as to justify any recommendation upon the* subject at 
present. 

It is evident that what some propose, thereby think- 
ing to better it, others would conscientiously regard as 
weakening it, and an immeasurable damage to it, if not the 
very destruction of the law itself. On this account, it seems 
quite too early to pronounce as to what might be advanta- 
geously attempted in the way of its amendment. The law 
as yet is comparatively untried. It plainly is not yet un- 
derstood by many, who it might be supposed would under- 
stand it, from having almost daily business relations with it. 
Merchants and masters are but just coming to be familiar 
with its working, liking it better, the more they come to 



22 

know about it, and to adjust themselves and their business 
to its requirements : while the officials of the law, having 
also still much to learn in regard to both its strength and 
its elasticity, have not had time to test its full power either 
in helping the right or in wisely removing commercial em- 
barrassments and personal grievance and wrong. 

It may be safely said however, that the Commissioner 
would do well to keep a book for the entry (without fee) of 
re-shipments proposed, such as he cannot and does not 
charge for ; and also that he should give more attention than 
heretofore, to the matter of apprenticing boys for sea service, 
encouraging it in every proper way, for the sake of our 
merchant marine. This also is deemed worthy of being se- 
riously considered. 

Your Committee believe that all original compacts and 
agreements among those friends of the law, who united in 
procuring its enactment should be faithfully carried out, es- 
pecially such as relate to certain contemplated exemptions ; 
and they venture to suggest, that a conciliatory policy in 
this matter, will accomplish very much, in securing the 
popular favor. 

The general conclusion to which your Committee have 
arrived, after their patient inquiry into the whole matter 
referred to them, is as follows, viz. : 

I. — That the law as it is, is doing good service, and work- 
ing advantageously, alike to seamen, to ship owners, and to 
masters of vessels, and should by no means be eepealed. 

II.— That while in some particulars it is capable of amend- 
ment that would probably make it a still greater good than 
it is, just what amendment is called for, can as yet, hardly 
be indicated, more time and experience being necessary to 
test the law and familiarize all parties concerned, with its 
mode of business, and its various provisions and require- 
ments. 

III. — That the law is chiefly opposed by those who have 
personal reasons for disliking it and wishing it out of their 
way ; while others are opposed to it because they have not 
informed themselves concerning it, and who, from this cause, 






23 

or from its persistent misrepresentation in their hearing, 
have not come to understand either its intention or its prac- 
tical benefit. 

IV. — That the administration of the law in the port of 
New York has been efficient, and under all the circumstan- 
ces singularly judicious, calculated to promote the interests 
of commerce, and to preserve a mutual good understanding 
between the sailor and his employer, protecting both from 
wrongs that previously existed to an intolerable extent, and 
which are admitted to be gradually disappearing. 
- V. — That the generous co-operation for the common 
good, of all the parties concerned, (at perhaps a temporary 
personal inconvenience,) in assisting and maintaining its 
administration, will not only serve to relieve the law of 
what objectionable features are apparent to some, but will 
also give it increased effectiveness in securing both individual 
right and prosperity, and the general commercial welfare. 

Thus concluding, your Committee recommend to the 
Board, with the facts and suggestions foregoing, the he-en- 
dorsement of the law, and the transmission of this Report, 
and the evidence referred to therein, to the Honorable Re- 
presentatives from the State of New York in Congress assem- 
bled, respectfully asking their consideration of the same. 

Signed : 

WM. A. BOOTH, 

R. P. BUCK, 

HORACE GRAY, 

JAMES W. ELWELL, f Committee 

david gillespie, 
john d. Mckenzie j 

New York, January 19th, 1874. 






APPENDIX. 



A. 

METHODS OF BUSINESS AT THE OFFICE OF THE U. S. 
SHIPPING COMMISSIONER, AT NEW YORK. 



As to Steamships. 

These vessels, generally, have a large portion of their crews re- 
maining on board, and to avoid interference with their duties, the 
loss of their time, and the temptations to intoxication which would 
occur, should they be brought to the Commissioner's office, the work 
of supplying and of paying off is all done on board. 

On the arrival of each foreign-going American steamer at this 
port, a purser's pay roll is sent to the Commissioner's office, for ex- 
amination, a day is fixed for the paying off the whole crew, and re- 
shipping such as are willing to go another voyage. For this latter 
service, no fees are attached. Another day just previous to sailing 
is appointed to ship the balance of crew, and at the hour of depar- 
ture, Commissioner's deputies see that all the crew are on board and 
orderly : substitutes for deserters are engaged, and the vessel finally 
cleared. Deserters and otherwise bad characters are recorded in a 
Black List, and are not re-engaged in any steamship, except on 
good reasons. Thus, each steamship requires the service on board, 
of Commissioner's deputies, three times, while in port. No extra 
charge is made for such service. Three deputies and one clerk are 
employed in this department. 

Should the expense of providing crews bear more heavily on steam- 
ship-owners, under the present law, than previously, it is because of 
their frequent changes, and the remedy seems to be in their own 
hands, for as before stated, there are no fees for re-shipments, and 
if men are so fairly treated that they will have no good reason for 
leaving their ships, and if, being willing, they are kept on while in 



26 

port, instead of being discharged in order to save a few days' pay, 
there would be no shipping fees, and a long step taken towards well 
drilled, well disciplined and efficient crews in our steamships, and in 
this way, so far as they are concerned, the safety of life and pro- 
perty would be greatly promoted. 

This department also keeps a Register of seamen, a Mutual Re- 
lease Bond, a Record of the Characters of Seamen, and a Register of 
Steamship Seamen, also sees that seamen discharged are provided 
with Certificates as required under the Law. 

There are as many seamen in the steamship trade as in sailing 
vessels. 

Paying off Seamen, in Sailing Vessels. 

This department is conducted by two deputies, who inspect all 
seamen's accounts, correct all errors, arrange many differences be- 
tween the captain and men, see that every man while sober, receives 
into his own hands his correct money, and his Certificate of Dis- 
charge, keep Mutual Release Books, a Register of the character of 
all seamen, and a Register of all seamen paid off under the Law. 

Shipping Department, Sailing Vessels, Foreign. 

This department is conducted by two deputies, one special deputy, 
three clerks, and generally about eight out-door men. The usual 
mode of procedure is as follows : the captain of an out-going ship 
calls at the office, gives the order for a crew, opens his articles, 
signs his own name, and signifies his intention of selecting, his crew 
on a given day and hour. This notice is put on the black board in 
the Shipping Room, and at the specified time, out of a crowd of 
sailors attracted by the notice, numbering often ten for every one 
wanted, he will select and engage his crew. The men must be 
sober, and have the voyage and contract explained to them : they 
sign two sets of papers and receive their advance notes. Very fre- 
quently captains will bring their entire crews, which they have 
selected, on board, along with them, and in no case does the Com- 
missioner exercise any right to the choice or selection of seamen, 
unless requested by the captain to do so. This, if men are plenty : 
if men are scarce and the captain so request, the Commissioner 
uses his best efforts by means of his out-door men in procuring 
them. If captains prefer to procure men themselves, no objection 
is ever made, provided the law is not violated. 

The crew shipped, three sets of articles are made out, (two ori- 
ginals and one copy) — a record of the crew made in the books of 
the office, certificates for each man shipped, given under the seal of 
the office, and attached to the crew list or articles ; certificates 
under Sec. 44 given, advance notes for every man of the crew made 
out, entered and given into the sailor's own hand, while sober, a 
deposit to cover this having first been made by the captain, and 



27 

the ship cleared. Next comes the notice of the hour of sailing and 
an order for the crew to be rendered on board. This is required 
six hours in advance. Crews are required on board, and furnished, 
at all hours from 5 A. M. until 7 P. M. Orders are given to the out- 
door men, whose business it is to find the seamen, either at their 
houses or elsewhere, and get them on board in time, and very rare- 
ly is there a failure. On board, the men are mustered, identified 
and questioned as to their landlord's accounts. If these have been 
unjust, they are corrected before the advance note is paid ; missing 
men and deserters are satisfactorily replaced, and the ship goes to 
sea —a return of which with an account of all changes in the crew 
is made to the office, by the officer who had been detailed to that 
ship. 

The accounts of the ship are made out immediately, and sent with 
a check to balance to the agent. A deposit of a few dollars more 
than the estimated amount of the bills, is usually required, in order 
to cover any unusual expenses that may possibly arise in getting 
the men on board. 



The Advance Note System. 

The management of advance notes, which the law only requires 
the Commissioner to witness the delivery of, by the Master to the 
seaman, has as a matter of necessity, fallen upon the Commissioner, 
and without any desire on his part. Whenever a man is shipped, 
his name and residence are entered in a book kept for the purpose, 
and an advance note, usually for one month's pay, due three days 
after the vessel sails, is given him. When due, this note is present- 
ed to a clerk, who examines the returns, to see if the man named in 
it, went in the ship, if the ship has actually gone, has not put back 
— compares the note with the stub, to guard against altering, checks 
it in red ink, and sends the bearer, with it, to the cashier, who ex- 
amines the indorsement, compares it with the signature on the Arti- 
cles, which he keeps by him, and if correct, pays it. 



Cash Department. 

This is conducted by one deputy and a clerk. All cash paid into 
it, comes from the other Departments, and is receipted for, by it, to 
them, And all cash paid out by it, is on bills checked and entered 
by them. Cash balances were kept, 1st for a few weeks, in the* Mu- 
tual Benefit Savicgs Bank, Park Row, 2d in Marine National Bank, 
3d and now, in National American Exchange Bank. None were 
ever kept in the Bank in this building. 



28 



EXTRACTS PROM STATEMENTS MADE TO THE SPECIAL COMMITTEE, 
TAKEN DOWN FOR REFERENCE, AND REFERRED TO IN 

the preceding report. 
December 9th. 

Charles C. Duncan, IT. S. Shipping Commissioner. — The sailor 
landlords sometimes give $50 at a time, to a captain or to a mate of 
vessels, to take snch crews as they will furnish, even now. If the 
Commissioner knows this, he will prevent it, but will not deter the 
captain, if he comes, from choosing the same men without bonus. 
All this $50 really comes out of the sailors. 

A deposit over and above " Advance," is required at my office 
from owners, or captains, in shipping crews, to cover any expenses 
to be incurred in getting them on board, &c. The balance over, if 
any, is returned after such service and shipment, at once, upon the 
rendering of accounts for such shipment. If no such expense has 
accrued, the whole deposit is at once returned, upon the settlement 
of accounts for vessel and crew. At times there may be a delay of a 
day or two, for a press of business makes it necessary, seventeen 
ships being cleared, in one day, last week. Then the accounts may 
not be settled for two or three days after the sailing of the vessel. 

Capt. Blake, IT. 8. iV. — Have a Naval Rendezvous in Seamen's 
Exchange. So far as relates to sailors, I consider that this law 
works well. As to the personnel of the ship, this is true, in every 
respect. Here the captain of a vessel has his pick of the men he 
is to have on his vessel. By the old way he never saw them, until 
they were out at sea. The law works badly for the pimps. I have 
yet to find one respectable sailor who will say he wants the law re- 
pealed. As to the names signed (of sailors) to petitions for repeal 
of the law, they are fraudulently obtained, obtained for a drink. 
One landlord was before us, the other day, to enlist a man, whom 
he said owed him $16. I found the charge of $16 was for a cup of 
coffee. In my judgment, the law is only too lenient. It would be 
desirable to have no changing of seamen on ships, or as little as pos- 
sible. The Cunard steamers employ the same men for years, as 
common sailors. They can and do have their crews all organized for 
any emergency. I would recommend an amendment to the law that 
whenever practicable, the crews of all out-going vessels, steam- 
ships particularly, should be shipped, long enough before sailing, for 
them to be organized into boats' crews, and to be ready for any 
emergency. Now, there is nothing of this. 

Yesterday I knew a sailor coming from Brooklyn, with $47 in his 
pocket. He started for the Sailor's Home in New York, stopped at 
Mrs. McKenzie's, was invited to drink, and they charged him $15 
for two drinks. 



29 

J. H. Jen"KS, Deputy XI. S. Shipping Commissioner. — My father 
and brothers have shipped seamen for thirty years. I have done it 
for the navy, prior to acting here in the Exchange. Under the old 
system the shipping master charged $2 to $4 per man, to the own- 
ers, for all seamen shipped. Charges varied very much. When a 
shipping master charged the sailor a higher price than at other 
times, he could afford to charge to owners, so much less. They ex- 
pected to get at least $5 any way, from the sailor, on the average, 
for shipping him any where. 

I consider the shipping law the most just law ever passed for sea- 
men. It assures to them the receipt of their money for wages, 
without fraud. 

The Commissioner, in my judgment, should have the control of all 
seamen sailing out of port. It would work to great advantage in 
securing a better class of seamen than now, as to character and gen- 
eral availability. "We keep here a book, in which we put down from 
our knowledge, the characters of given seamen, on steamships. 
(Book of. Deserters, <fcc, exhibited.) Under the operation of the 
law in the getting off of steamers, six such vessels, are often cleared, 
now, without one seaman drunk or fighting. The Firemen and 
Coal Heavers Association of New York have lately had a meeting, 
and passed resolutions repudiating any connection with the so-called 
procession of seamen, against the law, November 15th, and endors- 
ing the law, which they forwarded to Commissioner Duncak. 

(The original Resolutions were produced to the ('ommittee, by Capt. 
Duncan.) All good seamen endorse the law, most heartily. Its 
penalties are always explained to sailors when shipping. Under the 
old system, all mony due to deserters from the ship, went into the 
pocket of the captain of the ship. This is prevented now. 

Seamen are always paid off (steamships) on each voyage, and it 
is entirely optional, with them, whether they ship again, or not. I 
think it would be a wise thing if there could be some provision put 
into the law, by which the time set for the crew to be paid off, 
should be so fixed, that it should be done at the time set — now our 
officers from the Shipping Commissioner's office are often kept wait- 
ing to do this, all day, and sometimes until 10 o'clock at night. 
Steamship captains do not complain of the law, now. 

J. H. Pentz, Chief Deputy IT. S. Shipping Commissioner. — I have 
been in the shipping business for 30 years: shipped crews under the 
old system. The practice of extorting " blood-money " from the sea- 
man for getting him a voyage (by the old shipping masters), came in 
twelve to fifteen years ago, here in New York, and the system was 
carried on in connection with the consignees of vessels as principals. 
The shipping masters got accustomed, finally, before the shipping 
law came into effect, to charging the sailor just what they pleased, 
for getting him a vessel, in proportion to the demand for men. I 
recollect that on the Donald McKay, when she first sailed for China, 
from $6 to $7 per man was charged by the shipping masters. And 



30 

not seldom consignees of vessels too, exacted a commission per man, 
from the shipping master, for the privilege of doing their business. 
I used to charge owners of vessels sailing to Liverpool, $4 per man ; 
sailing to China, $3 per man. 

The consignees of vessels are opposed to the law, because before 
its administration they were in the habit of getting their men ship- 
ped with no expense to themselves. What we call " blood-money " 
came directly out of the sailors. I remember once, in a case where 
I had used $2,800 in paying off a crew, I presented a bill of $10 to 
the owner for it, and he told me that the shipping masters who did 
his work, were in the habit of giving him $20 for the privilege of 
paying off his men. 

In the office (U. S. Commissioner's) I attend to shipping men ; 
supervising the whole operation. I come in contact, of course, with 
ship captains. Some captains who are brought into contact with 
West India Houses, do complain of the law. I do not know why : 
they give no valid reasons. As near as I have heard, and can say, the 
principal objection to the law, which is made by them, is the coming 
up three pairs of stairs to the Commissioner's office. No complaints 
from shipping merchants come to me. 

I do not know of any points of improvement to be made in the 
law, as it stands. As to personal complaints and personal abuse, 
here at the office, I have had more from the shipping masters, since 
administering this law, than ever before, in my whole life. 

Under the old law, the Sailor Landlords' Association would discrim- 
inate against particular shipping masters, and they had no redress. 
I was obliged to pay $50 to the Association, without receipt given, 
even, because I did not comply with some regulation of theirs — or 
they would prevent my shipping men. They would not allow me 
to pay it under protest — would not take it in that way^ A large 
majority of sailors coming to this port, are in favor of the law, and 
now, a majority of the boarding house keepers, too. 

As to Capt. C. C. Duncan", I don't believe any other man in the 
city of New York could have managed the administration of the 
Law, as well as he has. I was desirous before I knew Capt. Duncan, 
that another man should be appointed Commissioner, but I see that 
he would have lacked the nerve requisite to execute it. 

December 11th. 

J.. H. Pentz. — Under the old system of shipping seamen, many 
features were the same as now. The • expense since the war is 
greater than before. Prior to the war, the ordinary expense of 
shipping men was $2 per man. After the war, that of shipping men 
in European ships, in my own shipping office, was $4 per man : dur- 
ing the war $5 per man. The merchants used to pay to other 
houses about $3 per man for sailors : we got more. There was no 
question that every shipping house aside from ours could afford to 
charge merchants less than I did, for we never took a dollar from 



31 

any sailor for getting him a voyage. As to the voyages around the 
Cape, some merchants paid me $4 and others $3 per man, since the 
war — before the war $2 per man. A large part of my business was 
to pay off crews. For this I charged $10 for large vessels and $5 
for a small one. With us, the ship owners and captains always paid 
this : none of it ever came from the sailor. I received not quite 
50 cts. per seaman,vfor doing this. 

As to the shipping of crews by other houses, many of them got 
their compensation by exacting "blood money" from the sailor. 
This was the universal practice, and well known. When there was 
an excess of men in the market, they charged the sailor anywhere 
from $6 to $8, for getting him a voyage. The merchants where I 
did b asmess, would never allow this. This blood money was ex- 
acted by the shipping masters, not by landlords. They got their 
perquisites from the sailor by overcharging him on clothing, to- 
bacco, rum etc. etc., or getting a commission, in some cases, from 
the clothier, for all goods sold to Jack. 

I have heard that the consignees of smaller vessels, sailing out of 
this port, not seldom, having money left with them, to pay sailors for 
their voyages and for their advance, shared a percentage, per man, 
of it, with shipping masters. 

I think that the U. S. Shipping Law, if ship owners and the Com- 
missioners could cooperate in its working, is a very good law. I 
don't think it could be materially improved from what it is now ; 
though I always contended, and do now, that if the old system of 
shipping seamen had been conducted as I conducted my business, 
then, there could be no improvement on that. But there would be 
no safety for seamen in this port, from the old shipping masters, if 
we should go back to the old system of things. There are plenty 
of those masters who would seize upon the sailor like ravening 
wolves. 

As to the administration of the law, I have this to say. I went to 
this office (Commissioner's) unexpectedly, but since beginning with 
it I have been absent but one day. The business has been con- 
ducted, there, as fairly as possible. I don't think that Captain Dun- 
can is too severe. I have never seen him exhibit temper or violence 
there — he seems disposed to be impartial. The boarding house 
keepers, at one time, appointed a committee, and demanded that he 
should pledge himself to ship no man, unless he boarded with one of 
their Association or was endorsed by them : he would not grant this. 
I would not assent, to such a demand when I was in business for 
myself, and was suspended by their Society, twice. This question 
often came to me in my old business, and I did not dare openly to 
decline. If I had, they would not have allowed me to get my men 
for vessels. I got men from Connecticut, and elsewhere, often un- 
beknown to the Association. Capt. Duncan's sons are efficient, ac- 
comodating and attentive. As to the receipts of the office, I think 
the total amount now received will run under $40,000 per annum. 



32 

Can't say as this is more or less than the whole receipts in the port, 
under the old system. I don't think (from my figures) that the 
Commissioner will get his $5,000 salary out of the receipts this year, 
and pay the expenses of the office. I think that the salary of those 
in similar public positions to those occupied by Duncan's sons, is 
greater elsewhere than what they receive for same amount of 
work. 

As to the paragraph 1, on page 7 of " Report " of Ship Owner's 
Association, I am very sure that if the appointment of Commis- 
sioners were taken out of the power of the Judges of the Courts, and 
made by politicians, the interests of commerce would suffer greatly. 
As to having a Commissioner at the Custom House, to supervise the 
shipping of seamen, it would be a moral impossibility to ship men 
there. As to having an officer at the Custom House where the 
shipping of seamen should be carried forward, I say the same thing : 
the truth is the objections of this sort settle down into objections 
against climbiug three pairs of stairs at the Exchange. But the Ex- 
change is well situated as to procuring seamen, being near them. 
I repeat it would be impossible to ship men at the Custom House. 

Robert B. Mixture. — I was chairman of the Committee of the 
Ship Owners' Association which made the " Report," now here. 
The views prevailing in the Association were diverse, and a Com- 
mittee was appointed to represent all views. At first it seemed 
hopeless that we could come to any unanimity, but we did finally 
come to a perfectly definite conclusion, which is embodied in the 
Report. We acquit Capt. Duncan of all the specific charges 
made to us, against him, and come to the question of his general 
administration of the Act. We took legal advice, and came to 
the conclusion, as we said, that his general administration is 
not in accordance with the Act, and needs modification. We 
believe the general principle of the law is a good one. The 
gravamen of our charge against the general administration of the 
law, is, that the Act does not contemplate any Commissioners having 
the monopoly of shipping seamen, and under his administration he 
takes it. We hold that the intent of the law was, that here, as in 
England, the Commissioner shall simply be a supervisor of the ship- 
ment of seamen by others, and see that the thing is properly done, 
that articles are properly signed, advance paid, &c, &c. And we 
hold that after all parties got used to the law as thus interpreted, 
the men would present themselves. 

Let us see what Congress meant in this law. We think that not 
even a comma could be introduced which would make it any plainer 
as to what Congress did actually mean in this law, and that our in- 
terpretation is right, — because of Sec. 66. It is preposterous that 
Congress did mean that with 85,000 the business of shipping sailors 
should be done, here, in New York, if carried on according to Capt. 
Duncan's interpretation. 



33 

The U. S. Shipping Commissioner, being called on by the Chair- 
man of the Committee, to explain how Sec. 66 came to be introduced 
into the law, said : 

" After this bill had gone through both House and Senate of 
the United States, and was being read for final action and passage, 
Mr v Hale, of Maine, (I think it was), stated that in the larger ports 
the fees might yield a salary too large for the services of the Com- 
missioner, and proposed an amendment limiting his salary to $5,000. 
This was adopted in the form of a new section (66), and, noticing 
the phraseology, I inquired of Judge Couger, who had charge of the 
bill, if such a construction as Mr. Minturn has given it might not 
be attempted : he replied, nobody but a fool or knave would con- 
strue the law, if Sec. 66 were put in, in such a way as to make it 
assert that $5,000 was all the sum appropriated by the Statute to 
cover the expense of administering the law in such a port as New 
York, or other large city. I saw my counsel, after the Act was 
passed and they gave me an elaborate opinion, sustaining my inter- 
pretation. This I sent to Judge Woodruff, of the U. S. District 
Court, and he returned to me a letter, saying that it would be in- 
credible that Congress had any other meaning, and advising me to 
go by the opinion of my counsel, I have done so, and this interpre- 
tation has been sustained at San Francisco and Boston." 

Mr. Mintukn" resumed. — As to the practical execution of the law, 
we object to a complete monopoly of this business, and think that 
by it all the abuses of the old system are likely to be continued and 
increased and multiplied. 

As to seamen being abused under Commissioner Duncan's admin- 
istration, we had many charges before our Committee, but we had 
no power to examine, and could not go into them thoroughly, but 
this I say, no one case was proved against him. It seemed to us, 
however, that abuses of this sort might occur, and that in future, 
under a monopoly of this sort, would occur. There would be no. 
competition in snipping to prevent them. The truth is we object 
to the principle of the law as a monopoly. 

I have been at the Seamen's Exchange, though not when busi- 
ness was going on. As to the shipping of men under this law gua- 
ranteeing to seamen more uniform rate of wages than ever before, I 
don't know. 

( The U. S. Commissioner, in reply to a question from one of the 
Committee, said, that he had refrained, as Commissioner, from in- 
terfering, in any way, with the rate of wages for seamen, object- 
ing of course to all blood money, but " it seems to me that it is now 
easier than it ever could be before, in this port, for ship owners to 
get together, and establish what they consider fair, as a rate of 
wages, and secure it.") 

I don't see how the law is calculated to regulate wages of seamen, 
except as Capt. Duxca^", with power for the owners, may choose to 



34 

use it, for the monopoly. The trouble between us and Capt. Dun- 
can is as to the radical interpretation of the law. I think the power 
of selection of his men by the captain of a vessel, under the law, is 
a good thing. I don't think it necessarily requisite to have men 
employed to 'get sailors togther, in such an office as that of U. S. 
Shipping Commissioner. As to abuses in the administration of the 
Act, we object to being obliged to go to the Courts, and have them 
removed — for we want all Executive and Judicial Officers separate 
and distinct. We desire that the U. S. Shipping Commissioner 
should be appointed by the Secretary of the Treasury, and then if 
there be abuses, we are willing to go to the Courts to correct them. 
"We do not conceive that the method of remedy, in such case, ought 
to be, to be obliged to go to a superior officer, to correct the wrong 
doings of his inferior. I think the principle of having the Commis- 
sioner merely a subordinate of the U. S. Court, (when the Court is 
the body to appeal to from his action) is wrong. And I think, prac- 
tically, that our appeals (Grinnell, Minturn & Co.) to the Sec- 
retary of the Treasury, when we have had any commercial abuses to 
be corrected, have been heeded. Perhaps we have been more for- 
tunate than others. Our construction of this law is against that 
of the Courts, and we mean it to be so. 

The U. S. Shipping Commissioner explained that it had been 
the purpose from the first, of those who were instrumental in get- 
ting the shipping law enacted, to keep all its appointments out of 
the hands of political parties. So far he had been very successful 
in this. 

The Chairman of the Committee said : " I know of no man in 
the community who has done one-half as much for the benefit of sea- 
men, for seven years past, as Capt. Duncan, — and yet the Ship- 
Owner's Report has no recognition of that, how is this, Mr. Min- 
turn ? " — Ans. " I said, Sir, that we surrendered our individual 
views on many points, when we made that Report." 

Capt. D. Gillespie, said : " "We used to ship our men on ship- 
board, when I was an officer on a ship. They were picked out at the 
Shipping Office, and then brought on shipboard. I sent them to the 
captain, and out of twenty men whom I had picked, often not more 
than two would come, the rest drunk, full of delirium tremens, &c. 
The first thing to do after we got out to sea, was to search the fore- 
castle for liquor, and destroy all they had. This condition of things 
I knew for twenty years." 

Gr. A. Brett, I claim that Capt. Duncan misconstrues the West 
India clause of this law • I was in favor of the law, and in favor of 
Duncan as Commissioner, but I have lived to change my mind. I 
am now in favor of repealing the law, and if that can't be done, of 
changing the Commissioner. I believe that in this, I represent nine- 
tenths of the ship-owners of New York and a majority of the sailors. 



35 

( IT. S. Shipping Commissioner. — I asked Mr. Brett the other day 
when he raised the point about $5,000 salary, and said that all fees 
over and above that should go into the U. S. Treasury, whether he 
really desired to put money into the Treasury, or kill the law, and 
he replied, " I want to kill the law.") 

I admit that I do want to kill the law. Capt. DuKCAisr never 
ought to have brought a ease, under this law, to Court, for he knew 
the intent of the Act. The sailor has not been elevated by this law. 
There is no Captain in my employ, who is in favor of the law as now 
administered. The swearing men, — I have not many — swear dread- 
fully, about going up to the Commissioner's office. 

J. W. Elwell. — I am surprised at Mr. Brett's statement about 
his captains. It is not so with me. I knew a captain who said, 
though $140 was on the books, to a sailor's "credit, that $60 was what 
was due to him, and gave that to him as his wages. " Bat" said I, 
" $140 is his due." " Well, now," says the Captain, " I give him but 
$60, for $60 is all that is good for him ; if he has the $140, he will 
fool it away ; the bad men will get it out of him. I saw the captain 
do this. Now, too, as to several cases under the old shipping system, 
I have known this state of things: The sailor comes back, and the 
captain says — this man never had his advance, and we have paid it a 
second time, repeatedly the shipping master when we go to him, says : 
" I paid it to the landlord." — I think this law is good for the sailor. 
Capt. Dukcan" knows, too, how to cut off those landlord's extras. 

Mr. Brett, resumed. — There were fifty shipping masters in the 
port of New York, at the time of the passage of this Act, heads of 
families, many of them christian men. Now they are thrown out of 
employment to make room for supporting one family, instead of 
fifty. 

Question by Chairman. — Do you suppose, Mr. Brett, that a bus- 
iness which it took fifty different offices to do, under the old system, 
can be done here, in New York for $5,000 per year ? 

Mr. Brett. — That isn't the question. The sailors have signed 
a petition for the repeal of the law, the ship owners have signed a 
petition, the Ship Owner's Association have reported against it — the 
shipping interest is opposed to it. As to the appointing power un- 
der this law vesting in the Secretary of the Treasury, I would think 
it a mistake to have appointments made under this act, for political 
reasons, but if Judge Woodruff has sustained C. C. Duncan's in- 
terpretation of this law, as said, in the letter of his, which has been 
referred to, then he isn't a proper Judge. 

The U. S. Shipping Commissioner. — The income of the Office of 
Commissioners, through the Country, was, as the law was originally 
proposed, to be made to come in, from fees alone, but Sec. 66 was 
afterwards inserted, so as to guard against the Commissioner having 
too large fees, in any place. 



36 

Mr. Brett. — Capt. Leayitt, of the bark Jer. Leavitt, had to 
reship his own brother, as mate, before Capt. Duncan, though he 
staid on the ship ; he was obliged, in sailing another voyage, to re- 
ship him, and pay fees for him. 

The IT. S. Shipping Commissioner, in explanation. — The Law 
reads : " On return of every vessel, a crew may be reshipped for an- 
other voyage without additional fees:" I have always meant to 
be liberal in construing the words " on return." I make the limit 
they are to cover, to be five days : after that they must reship if they 
sail again in the same ship, on her next voyage out, and I can't dis- 
criminate in a crew between a mate, or brother, or any relative. If 
I did, I should have crews fraudulently put upon me, frequently. I 
have never used the construction of the Philadelphia Court, about 
reshipment — it is very stringent, more strict than my practice. 

Mr. Brett, resumed. — As to Sec. 12, we shipped a crew to the 
West Indies, outside Duncan's office, and paid them off, and then 
got a note from his office, that if we did not come up and pay him 
his fees, then, we should be fined $50 per head. We went and paid 
them. 

{The IT. S. Shipping Commissioner explained, that the note merely 
said that if these were not paid, they were liable to a fine of $50 per 
head, for each sailor shipped outside the office.) 

I never knew of any case under the old system, where a sailor wae 
compelled to go on board a ship, and sail against his will. We have 
the same shyster lawyer around our office, that we used to have un- 
der the old system. I see no improvement of sailors under the new 
law, as to immunity of sailors from suffering at the hands of those 
men. I moved, in committee (Ship Owner's Association) for appli- 
cation for repeal of this law. I look at it as a place for Duncan's 
family to be supported. I don't oppose the law for its pecuniary 
damage to the owners of vessels. 

The Chairman requested Mr. Brett to furnish him the names of 
those whom he knew to be opposed to the law, that they might be 
invited to give their views upon the subject. Mr. Brett said, call 
Capt. B. E. Thurlow, of South street. 

December 13th. 

S. L. Henderson. — I have been with Grinnell, Minturn & Co. for 
twenty years, as outside man for the House, looking after their ships. 
The snipping of seamen in this port, under the old system was carried 
on, in this way. Application was made to the shipping officers 
(masters) for the purpose of engaging crews, when they were wanted. 
They picked up the men and charged for that. Sometimes, on long 
voyages, the captains of the vessels would go up to the offices, and 
select their men, or they might send their mates to do this. Some- 
times they would insist upon having, and got substitutes, for any 









37 

men they did not like. Their usual charge for shipping men was a 
commission, varying from 3 to 4J dollars. I speak of the prices our 
house paid Mr, Pextz ; we paid him more than we would to others, 
for he did for us a good deal of other business, acted as notary, etc. 
The ordinary price, outside Pentz's, was $3 per man. For that, the 
shipping master was to put the men on board, and see that they got 
there. As to abuses then existing, I have heard it alleged that 
they used to bleed Jack, some ; i. e. when men were plenty, and it 
was desirable for them to get a ship, the sailors made no hesitation 
in giving some of the employees of the office, $5 or more, for getting 
them a berth. It was pretty generally understood, that they would 
do so. I have heard a report, too, that the ship's " husbands " had 
demanded from the shipping masters, so much per man, out of the 
crews shipped. I don't know the facts. I have seen sailors go on 
board ships, for voyages, when they didn't know where they were 
going, and when they got out to sea, I presume it was found, too, 
that there wasn't much sailor about or in them. This was a com- 
mon thing duriag the war. I think the price for shipping before 
the war, was less than it was after the war. 

I have read the new U. S. Shipping Law, and seen something of 
its workings. I think the management of the law, take it all in 
all, is decidedly in favor of the sailor. I think it is decidedly an ad- 
vantage to him. I can't see how it can be a disadvantage to the 
captain, or owner of a ship. I guess the sailor's own opinion as to 
the law is about according to how much he's got in him — of 
whiskey, good or bad. The truth is, the sailor is bought up, soul 
and body by the boarding hou^e keepers. They control him : there 
is a good deal of self-interest in that matter. As a general thing, I 
am not familiar among them, (the boarding house keepers), and 
don't want to be : there is a good deal of human nature in that class 
of men. 

As to the administration of the law, the acts of the Commissioner, 
I have only seen the outside of the Commissioner's office. I don't 
know that I have seen anything, out there, decidedly wrong. I 
have had an impression and have so stated to the Deputy Commis- 
sioner on this matter. One of my duties is to audit the bills, and in 
the Commissioner's bills, I have found some charges that, as I read 
the law, it didn't authorize him in making, but they were small 
charges, and I have passed them. One of them, I remember, waa 
something in connection with putting a crew on board ship : one 
item charged for, was for boatage, this is not in the law. "When the 
Commissioner's administration first began, these charges were not 
made. They seemed to me, afterwards, to grow, and I said " ^ e must 
look into the law, and see if these are right": it was for boatage, 
when I have known that all the men were at the dock, and got on 
board the ship there, and went to sea. These charges were in, pretty 
regularly, after they commenced to be in at all. I think Mr. Pentz 
may perhaps have explained this to me. Another matter was this, 



38 

now I think of it. In one case we were charged $1 for a Crew List. 
I sent up to Mr. Pentz, and he said we would have to have it at the 
Custom House, so I let it go. There was a charge in Gapt. Duncak's 
bill for an official log: I don't know whether the law asks for it. 
(IT. S. Shipping Commissioner : " It does ; we don't oblige ship-own- 
ers to buy of us ; we sell the log for 50 cents; it was not required 
until this law came into operation. The uniform charge for them, 
now, all over the country is 50 cents.") 

XT. S. Shipping Commissioner explained as to the need of having 
a third copy of the Ship's Articles, and a Crew List, an extra copy 
being called for by the U. S. Collector. It is only now and then 
that a Captain requires us to make his Custom House Crew Lists : 
they usually get their Custom House Brokers to make them. Some 
of Grinnell & Minturn's captains ask us to do it. I charge a dollar 
each, and give the money to the clerks. Mr. Stockb ridge, when 
the law began, asked the privilege of having a desk on our floor, to 
make out these lists ; I gave it to him, but he only made ten or a 
dozen, and then gave it up. 

Robert B. Minturk. — One word I would like to say. I should 
have said it here before, on, Thursday. My actions in this matter 
have been governed by conscience, and I can assure you that there 
are names of the friends of seamen in the Ship Owner's Association 
Committee, and they are convinced that the changes proposed by the 
Report in this law, would be for his benefit. In the mind of some 
of the gentlemen there, pecuniary considerations in which they were 
interested, may have operated, as they would seek to guard them- 
selves against damage, — but it was not so on our Committee, — the 
majority of the Committee, too, were heartily in favor of all the 
recommendations of the Report. I am perfectly ready to admit that 
so far as the question of money goes, we (Grikkell, Mixtue^ & 
Co.), are as well off under this law as before : that is no motive with 
us. I agree, that throwing the sailor back under the old system — 
and that the abolition of this law would be a misfortune, and I 
don't think those who are trying for it, will get it either, however 
much they want it. I don't think that the law should be abolished, 
or the Shipping Commissioner's supervisory action should be abolish- 
ed. I believe that Secretary Richardson or Boutwell would make 
as good appointments to this office as any Judge would. There is 
no point whatever in which our house is not as well off, now, as it 
was under the old system. 

The Chairman of the Committee : — This law was designed to pro- 
tect the ship, the captain and the sailor. I had thought we were 
happy, in its workings, in that respect, and your (Mr. Minturn), 
present expression confirms that impression. I was in the China 
trade for twenty years, and we found another disadvantage un- 
der the old system — our captains always expected to be hauled 
up before the Marine Courts. Now, there are two to three cases 
per day on the average, of this sort, settled by the Commissioner. 



39 

Two shipping merchants, members of the Committee, confirmed 
the experience of the Chairman, in all respects, as to the old state 
of things, and the present condition of affairs. 

Mr. Minturn. — "What objection is there to exempting the West 
India traders from the operations of this law ?" 

IT. S. Shipping Commissioner. — " The West India traders are under 
the law by the decisions of the Courts. As to the coasting trade I 
make captains and owners special deputies for the various lines of 
steamers. We look after the large sailing vessels, ourselves, but the 
small ones, nobody troubles. I should like to ask Mr. Minturn, 
where is the room, under the change in the law which your Com- 
mittee proposes, for the third party you have in mind, — to get men 
together — to come in ? Now, the Commissioner does what you say 
he ought to do, witnesses the signing of articles, the men can come 
to us at any time, we don't need any third party to procure men. 
We require nobody to go outside to procure men for us, they are 
there in the Exchange." 

Mr. Minturn. — I may say a word more, as to the history of the 
investigation in the Ship Owners' Association. It began before 
the decision by Judge Benedict was given — a good while before, 
and' it ended after that decision. As to any influence I had on the 
Committee, I determined not to have the Committee used against 
Capt. Duncan", and I think we were not so used. As to the ques- 
tion of the abuses of seamen by landlords, we didn't conceive it to 
be our function to go into that, — that is notorious, and has been for 
a long time. I will, as he requests, send the names of any par- 
ties who might well testify before this Committee, to the Chairman, 
if any occur to me, in a day or two. 

Mr. Henderson, resumed. — As to sailors themselves, I have heard 
some few expressions from them that they were glad to have the 
privilege of handling their own money. My candid opinion of the 
law is, that it is a good one, and that if it is well administered, it 
will benefit the sailor more than any one ever made for him. I 
don't know that there is any special or general objection to Capt. 
Duncan. There is a very great propriety in having for this office 
some one who understands sailors. Our vessels are now dispatched 
with some marked improvement in the condition of the crews when 
they come aboard. As to the facilities for getting men, perhaps 
they are about the same, for us, as they used to be. We con- 
sidered Mr. Pentz the best man in New York to do our business 
for us, and we find him now in Capt. Duncan's office. The prompt- 
ness and efficiency with which we find things there, is just about 
as it used to be. 

Capt. Jordan of the ship Rhine, (one of Grinnell, Minturn & 
Go's ships). — My opinion is that this is a good, righteous law, 
working well, not only for ships, but for the sailor. I have been 



40 

master and mate for thirty years. I have seen a good deal that 
was bad in that time. Since the law went into operation I have 
had no difficulty in getting my crews, and have them come on board 
sober. In every instance we have had our crews come aboard at 
the dock. There is no shanghaeing now — there was much of it 
in the old times. I could mention the names of a firm who did 
this, who used to ship for us in 1855. I remember once when I 
took the Lady Franklin, out of twenty-four men that were supplied 
me, I got four that could steer, as for the rest they were plumbers, 
drivers, laborers, lime-burners, daguerreotype takers, etc. They 
could not, some of them, handle a rope, and I remember I had to 
poultice their hands when they got blistered. This is one case of 
many cases I could name. We are free from all this now. I asked these 
men how they came to go to sea : they would say, I met a man on a 
ferry-boat or on the dock, and he said, " don't you want go to work 
on a steamboat," or some such place, and I said, " yes," and they got 
me on your ship. I often had to hold these very men or have none. 
I would say to these men, " did you get your money from the men 
who brought you here V " No," they answered, " I got no advance, 
I only got this mattress, and oil coat, this pair of shoes, &c. &c." I 
have had nothing, as I said before, of this lately. These things I 
have spoken of, are merely samples, out of many cases, say three 
out of four times when I have sailed from New York. From this 
shipping master of whom I speak, I went to Pentz, who was a 
stranger to me. I could give more details than I have. 

As to defects in the law, I have seen none in its practical work- 
ing, not one. I am not conversant with the administration of the 
law ; know nothing of any trouble with the Commissioner's depu- 
ties ; they are polite and courteous. I have not picked out any crews 
at the Exchange. I have used Mr. Pentz there, I did have once a 
black crew ; picked them out there myself, when sailors were scarce, 
and they did well. I consider it an advantage to be able to pick 
out my men. I never had any experience with the Marine Court ; 
I used to fee a man to keep me clear of it. I have had one case of 
difference, between me and sailors, before Capt. Duncan, for adjudi- 
cation, yesterday. I liked the way it was decided, very much ; the 
facts were beautifully brought out. The Captain managed the case 
well ; I like that feature of the law. Under the old system, I often 
found it necessary three times out of five, to get my ship into the 
stream, in order to get my crews on board, and often had to go to 
sea with my crew unfit to go to sea with. The first thing after get- 
ting outside was to search the forecastle and destroy their liquor. 
There is hardly ever a dispute now between a captain and sailor ; 
the thing is so systematic now. 

Capt. B. E. Thurlow. — I have been opposed to this law and to 
this Commissioner. I am in the first place, opposed to anybody's 
taxing me without my consent, and this has been so with me from 
the start, since it has been in operation. Take my own case. I have 



41 

been in business thirty-five years, as captain; I used to ship my men 
from three different offices. I have brought up, myself, twelve men 
and made them masters and mates ; I left off four years ago. I never 
paid a man for shipping sailors, paid no fee for it. That isn't so now. 
That is a matter of dollars and cents. My vessels in which I am 
interested, some of them, lie up at Weehawken. They have to come 
clear down to the Commissioners office, and all my men have got to 
be shipped, my brother, even, and all friends. 

One half the time I was a captain, I had men sent on board my 
vessels. The shipping masters always furnished articles. I used to 
have stationary men to the extent of one half my crews, and the rest 
were supplied me from the shipping offices. I paid $2 apiece, for 
these. 

I went up to the Exchange, once, to get a crew arrested for steal- 
ing — could not get them taken up. The way the thing works, now, 
it makes sailors no better. I never took a crew aboard my vessels 
lying in the stream. Claek & Dean used, sometimes, to give me 
drunken men, but the other two offices did not. Two men were in 
my office yesterday, swearing about Duncan". 

I know that Capt. N. Tract of the brig Teyieriffe, took a sailor 
before Duncan, and wanted him docked, as not being an able sea- 
man. Duncan said, that, to test that, the captain should have sent 
him up to furl a royal. 

( XI. S. Shipping Commissioner. — This captain told me he wanted 
the man docked $5 per month. He said the man could steer: indeed, 
that he never set him at any job which he could not do. I told him 
that the general assertion that the sailor was incompetent, would 
not do, under the law ; that if he had wanted to prove him so, he 
might have asked him to go up and furl a royal ; if he could not do 
it, he was incompetent, of course.) 

I think American ship-masters should not have to buy their 
lime-juice by law : our sailors are well fed — always have been. I 
don't like this provision of the law. I am most opposed however, to 
being obliged to ship relatives. I am opposed too to the location of 
the office : there is in my judgment only one way to run a good 
shipping office in New York, to have a grand, large boarding-house 
for sailors and have your shipping office there, and have control 
of it. 

Most of the owners of vessels are small owners, of -^ and -fV of 
the ship, and if you hamper them by all these regulations it 
comes hard on them. I think that if the sailor isn't fit to take care 
of himself no one can take care of him. I have never been in the 
Marine Court, and never saw one. Have handled men roughly; 
had to. I once struck a man on his head with a stick, and it 
bled for half an hour — he was coming toward me with a knife; 
then I had him tied, shaved off the hair from his head, and put 
on a plaster. As to the decision of cases before the Commission- 



42 

er, we have one young captain now, who is pretty rough. A year 
ago, or more, he came in after having had trouble with a sailor, on 
a voyage, and was obliged to go before the Commissioner — he told 
me, before he went, that the worst thing for him, was, that the sailor 
had his pocket full of his own whiskers which he (the captain) had 
pulled out, to use against him, as testimony, and " he will prove his 
case." After going up to the Exchange, he came back, and I asked 
him " how did you get along?" "Why" says he, " Capt. Dotcax 
dismissed the case and I was satisfied." I think our sailors generally, 
are better, the last eight to ten years, than formerly. I have always 
treated my men like human beings. I don't think there is any 
less shanghaeing, now, than before. I suppose C. C. Dtocan got 
up this law, himself. 
» 
The Chairman of the Committee explained the origin and the 
history of the law, going back to the N. Y. State Sailor Boarding 
House law of 1866, and tracing it thence. " This law originated 
among ship-owners in San Francisco." 

A member of the Committee added. — I know that if this law had 
not been passed, a law much more obnoxious, would have been, ap- 
pointing a Commissioner in every State in the Union, to examine 
the qualifications of every sea captain, to inquire into the construc- 
tion of every vessel, what lumber is used in it— what cargo she car- 
ries, &c, &c. It would have been more rigorous by far, than this. 

'December 16th. 

W. S. Hotfland (of Howlaxd & Frothingham). — I am in favor of 
this shipping law, to a certain extent, but I do not think it benefits 
the sailor at all. I don't see that it does or can prevent his being rob- 
bed by the landlords. The landlord gets the sailor's money ; I don't 
see any other way than that he should ; the sailor is in debt to 
him : say between here and Liverpool — the sailor owes the landlord 
there, all the advance be gets there, before he comes away ; and it 
i3 just so, here, after he has been here a little while. He comes here, 
he hasn't got a cent — and the moment he puts his foot on shore, the 
runners bring him to the landlord, and he is supported in ex- 
pectation of getting pay for his support, out of the advance he 
is to receive. I take it for granted — don't know — that there 
are some good landlords — and some bad ones — they come from the 
sea, themselves, often. The present plan of shipping crews works 
better, as to paying off crews, than the old system. Our house has 
been nearly out of active business. We haven't shipped more than 
one or two crews, since the law went into operation. 

We had to take for the Sunrise crew, anything we could get — we 
could get no good seamen, the ships could not be detained here, for 
they were liable to charges. Under ordinary circumstances I differ 
with the Commissioner as to his way of having a crew shipped. Un- 
der a republican form of government, every captain should have the 



43 

privilege of picking out his own men. I don't think that the law 
meant that the captain of a ship should be forced to go before the 
Commissioner and thip what men he finds there. 

The IT. S. Shipping Commissioner submitted a book from the 
Commissionei's office showing the cost of shipping men for certain 
houses and vessels, and Mr. Pe:ntz, his Chief Deputy, showed his 
own book kept by his shipping office before the law was enacted, in 
which the same vessels had been provided with seamen by his office, 
before the law went into operation. Instances exhibited and com- 
pared, were as follows : 

a. On page 223 of the U. S Shipping Commissioner's Book, for 
shipping twenty five men for the ship Cornelius Grinnett, $57 was 
the charge of the U. S. Commissioner. By book of Mr. Pentz, 
same ship, twenty-three men, the owners paid in Oct. '71, $96 50, 
$4 per man. 

b. Nov. '73, in U. S. Shipping Commissioner's Office, the ship 
Constantine was charged for shipping twenty-six men, $55, and $6 
boatage. In Nov. '70, Pjentz for shipping twenty-five men, 
charged $102 50. 

c. The ship Great Western, under the shipping Commissioner, 
shipped twenty-nine men at a cost of $61 00 ; under Pektz, the 
same ship, for shipping thirty-two men, paid $126. 

(These instances fix the expense of- shipping seamen under the 
law, here, at about one-half what it was before the law.) 

Capt. James H. Little, of the Star of Hope. — I have been en- 
gaged, mostly in the California, China and Gruano trade. I shipped 
a crew last April in San Francisco, before the U. S. Commissioner 
there — got a better lot of men than usual. I have shipped crews 
under the law, in Boston, San Francisco, and Baltimore, and have 
paid them off, here. I have been satisfied with the law, on trial, 
though I was prejudiced against it, by outside parties. The U. S. 
Commissioners in all these ports, treated me as gentlemen should ; 
so has the one here. 

I have shipped seamen for twenty years past. I prefer to ship 
them under the new administration, so far I have been satisfied 
with the law. I can suggest a single amendment to the law which 
I think, would improve it : that is, as to the requiring a deposit of 
money, from the captain of the vessel, before the Commissioner will 
undertake to ship men for him. It is a conceivable thing that the 
office may not be responsible. If the Commissioner is, some of his 
Deputies may not be. 

J. O. Ward, Shipping Merchant. — As to the petition against the 
law, which has been signed by the shipping agents, the men whose 
names are on that petition, know very little about it. (Mr. Ward 
gave an account of a friend of his who signed the petition and op- 
poses the law, simply because a check of his was sent back to him 



44 

from the Commissioner's office, in the time of the panic.) Among 
the members of the Ship Owners' Association are those who do 
think Capt. Dukcajst is arbitrary, and others, again, think the 
working of the law is expensive to them, and some of them, 
too, fail now to receive the sums, anywhere from j of 1 to 5 per ct. 
in commission, which they used to get from the shipping masters, for 
the privilege of shipping crews for them. The captains of ships, 
too, have made money off the sailors in time past. These shipping 
masters have offered to divide with me, on shipping a crew, and 
so they do with captains. I have looked after the real condition 
of things in the Ship Owners' Association, of which I am member, 
and find that all this is about the state of the case. With the ship 
owners, then, it is just a matter of dollars and cents. If it be possi- 
ble, I personally, would like to have the law retained, modifying it, 
if need be, so as to suit a reasonable majority, of the ship owners. 
There is an impression that Capt. Duncan got up this law, him- 
self, and for himself. The law has interfered with all of them, and 
they want it out of the way, so that they can go on with their 
business. I don't think the law ought to be repealed. I don't 
think reshipments ought to be forced between Portland, Me., and 
Nova Scotia ports. 

December 18th. 

Capt. Hexry Erben", V. S. JST., stationed at the U. S. Naval Ren- 
dezvous, at the Seamens' Exchange, in Cherry St., JST. Y. — About 
this law, relating to the sailors, it is a very proper thing. I have 
paid a great deal of attention to it. We have the same trouble 
with sailors and their landlords, down stairs, as they do upstairs in 
the Commissioner's office. With us, the landlords are cross exam- 
ined when they bring sailors to be enlisted, if they make claims 
against them ; and the right deductions are made : we allow them. 
I have paid attention, also, to the discharging of seamen, up stairs. 
I have heard the sailors talk up there. They did not know who I 
was ; I wore no uniform. Now the men go away from the Ex- 
change, satisfied. 

Yesterday we had a case where a man (naval) who had just been 
paid off, had $160, and was charged SI 75 for a piece of niggerhead 
tobacco, which you can buy anywhere, at 20 cts. per pound. 

I have seen rectifications brought about by this law. Formerly 
the old custom was, in the merchant lines, to turn men off, any- 
where, when they were not wanted : at a foreign port for instance, 
then return them after a while as deserters, and improper persons 
would take their pay to themselves. I knew a case, myself, of this 
sort, when in the harbor of Rio de Janeiro, on a merchantman. As 
soon as the vessel got there, the men were turned off, and after a 
while reported as deserters, and the captain charged the owners for 
their time and got the pay, not marking the men as deserters, either, 
until the vessel was ready to sail. 



45 

I have talked with ship owners about this law : did before I went 
to the Exchange, and they sought to prejudice me against it, but I 
went there and found it working well. I think it ought to be more 
stringent ; it ought to take in all the coasting trade, and every ship 
going out from this port, into deep water. 

As to the demonstration at the City Hall Park, a few weeks ago, 
I went through the park; happened to, at the time. There were 
about 150 men in the procession. I don't believe there were six (6) 
seamen in the lot. I have conversed with ship captains as to the 
law, and they all admit that they get, now, better men than they 
used to. Anybody can judge of this, if they read the papers ; we 
don't see any accounts of ships being detained in the harbor for 
want of men. Upon my word, so far as I can find, there is no real 
ground for opposition to this law, but prejudice against Capt. 
Duncan. 

I have seen nothing harsh, or severe, in Capt. Duncan's adminis- 
tration ; there must be control there, and Capt. Duncan is the pro- 
per man to exercise that control. I have never heard a ship captain 
complain of the law, and I have talked with several. They like it, 
really, and they would all say so if they would express their views : 
they do say so sometimes, — and that they make objections, as they 
do is, I believe, on account of their owners. I think the location of 
the Exchange good. No more time is lost, there, than there would 
have been, under the old system in running about to different 
places. I have been in the Navy twenty-five years ; and know as 
much of the condition of affairs under the old system, in merchant 
vessels, as it was possible for any one in the U. S. Navy to know. The 
sort of men that used to go to sea, under the old system, do not now 
go, it seems to me. This law in its working at the Naval Rendez- 
vous, and in connection with it, benefits the government. Each helps 
the other. I think it is cheaper to the government, now, than under 
the old system. We pay no advances. There has been no rendezvous 
in New York since the war, before this. 

As to money paid by us for the sailors, when they come to ship with 
us, we pay his board bill, if he owes one ; and we will worm that bill 
down to the very smallest point. The runners have got so, now, 
that they know we w'on't pay any advance, and they don't expect it. 
The men have their clothing provided for them, on ship board. We 
can find out pretty well by our questioning what the sailors have 
really had, when they come to ship. One man came to us, with a land- 
lord, and said he owed the landlord $16 for board. We found that he 
had gone to the landlord's house and staid there from 4 a. m. to 9 
a. m. and had a cup of coffee only. We paid 50 cents for his half day's 
board and that was all. The $30 which came to the man, I sent to 
the man's wife at Fall River, and have since got the check back, with 
her endorsement. 

The officers and clerks at the Exchange are courteous and effi- 
cient. I have been up there and seen a good deal of them, too. 



46 

Capt. Gray of the P.M. IS. S. Acapulco. — I have shipped several 
crews since this law has been in force. Have found the Commission- 
er's Deputies courteous and polite. I like the working of the law — 
it is excellent — don't operate against the captains. It has been said 
it was expensive to the owners. I don't know about that. I don't 
have to go to the office (Commissioner's) to ship my men. The work 
is all done on board by deputies. 

I think the law is beneficial to the sailor, too. I have never heard 
any complaint of it, from them. I never had any practical control 
over my seamen for twenty-five years prior to this law; now I do. 
Men heretofore would ship and run away five minutes after ; I have 
on board a crew of ninety men, and with them all, I have now no dis- 
turbance : no trouble from the firemen or any of that class — for they 
all know that if there be .any occasion given for it, there will be a 
reduction made from their wages at the end of the voyage, before 
the Commissioner. We pay no fee for reshipping the same men. 
When we return from a voyage out, we pay 50 cents per man for 
their being paid off, and the sailor pays one-half. I have com- 
manded twenty-one steamers — in all for ^twenty two years ; — all of 
the merchant steamers of the P. M. S. S. save in the war. This is 
a law, and (here seemed, before, to have been no law. 

William White, 39 Oliver /St. New York. — For twenty-two years 
I have kept a Sailor's Boarding House in New York : for sixteen 
years at place above named, and for six years at 41 Oliver St. — next 
door to it. As to this law, I don't see anything bad about its work- 
ing. The sailor pays no $5, now, for getting a chance, and the cap- 
tain of his ship has got, now, to settle with him. In the old time, 
they used to do just what they wanted to, with the sailor. Some of 
the sailors don't like this law, they are the bad ones — the ruffians : 
The good sailors do like it. As to the expense to them, it costs sailors 
now a good deal less than it used to. In the old times, they used 
to go around to the offices, and pay S3 to $4 per man. It is better 
for me, too, now. The advance note is just as good for me, as the 
money. I have no fault to find with Capt. Dilncak. They say he 
is arbitrary and severe — well this is the reason they will say so : 
in the old times, they would get their $50 advance, and the sailor, 
would be in debt for board and clothes and it would all be taken 
up. Again, in the old times, there was no guaranty that the board- 
ing house keeper would get his dues; and moreover we pay noth- 
ing, now, for shipping our men. I have been in the business twenty- 
two years. As to shanghaeing, in the old times the boarding house 
keepers would generally give him a good dose of liquor (something 
in it if necessary) and put the sailor on board. Under this law they 
can't do it. There was a good deal of this, and with all the shipping 
offices except two or three. I have not seen any, since the law went 
into effect. The sailor has better treatment in the houses, too, now. 
I have as many boarders now, as ever. I have paid an amount as high 
as $1,000 in a year, for shipping seamen, in the old days. I think the 



47 

law is a good one as it is now. The men (Commissioner's) at the Ex- 
change I find no fault with. They treat me well. I go up there, 
and I have seen no wrong treatment there. I have been there 
nearly every day since it was opened — sometimes am away a day 
or two perhaps, when I have no sailors to ship. When a sailor 
bought his new clothes, under the old system, I have known them 
to steal the new suit right out of his bag, (the keepers) and put in 
some old things. I have seen when $25 was given them to go to Sa- 
vannah, — seen the keepers and runners go down to the ship with the 
sailor, and he would say, just before he left, " well now, give me 
my $15 or $20" as the case might be — and they, on shore, would tell 
him — "go to. hell" — and he would go off without it. Such a con- 
spiracy as was got up last spring, by the landlords, works, really, 
against the interest of both sailors and ships. 

Charles E. Ryberg. — I had to do with shipping crews on the 
Sunrise, Top- Gallant, Plymouth Rock, North American, Baltic, &c, 
&c, last spring (May 73). My duties are to always read over to 
the sailors, the shipping articles, explain the voyage, tell them of 
the penalties of disobeying the law, &c. I also witness their signa- 
tures. The San Francisco ships that have had trouble — the Sunrise 
the Baltic, &c, got crews from us, who were to go on board, — but 
about half of them turned out deserters. The North America's 
crew was shipped in my presence — so was that of the Sunrise. 
The captains sent up a good many of these men, with orders. I 
think about half went in the ship. The captains got the places of 
the others filled. I don't know what their characters were. 

(U. S. Shipping Commissioner. — The law requires that in cases 
like these, the captain of the ship shall report the names of men 
shipped in place of the deserters, when he gets to port to which he 
has sailed. I suspect Capt Clark of the Sunrise was lame there, (in 
San Francisco), before he reported his.) 

I don't think that more than one or two of the crew originally 
shipped for the Sunrise, went in her. They got the substitutes in 
South Street and wherever else they could. I don't know what 
caused the men to desert, except some threats from outside. In 
the Top-Gallant, two or three men only deserted, and we our- 
selves filled up the list. I make it a point in shipping a crew 
to have every man understand what he is doing :' I stop in the 
middle of shipping a crew, and ask them if they do. I have been in 
the office from the first. Everybody has treated me as a gentleman. 
The Commissioner treats me so, and all others. No one complains 
to me, of him. I shipped men in New York for fourteen to fifteen 
years before this law. The general reputation, in old times, as to 
shipping masters was that they would put men on, who were unfit 
to go. As to shanghaeing, I speak from hearsay about it : in the 
old times, it was said that it was done. 



48 

Our shipping fee (Pentz & Ryberg), for long voyages, was $4 
per man. Some other offices shipped men for nothing, but got it 
out of the sailors. 

I think there is no reason why this law isn't a good one ; it is a 
good one, and works well. I think that under the new law, the sail- 
or is more sure to get his wages than he was before. If the sailor 
don't get his advance money, now, it is his own fault. Tn the old 
times, they would often charge $2 per lb. for tobacco furnished to 
the sailor. 

The system of paying off, at the Exchange, is a great deal better 
than the old system, generally. The lawyers, then, used to thrive 
by getting the sailors to sign their power of attorney and they would 
take one-half to two-thirds of the wages due. The shipping offices 
would pay off the sailor, sometimes, with "Wild Cat" money, though 
they had got good money from the owners to do it with, and the 
sailor lost largely by tjiis. 

C. A. Hekcke. — I have been connected with the U. S. shipping 
Commissioner's Office from the first. My business is to notify the 
crews and get them on board the vessels, after they are engaged. I 
have followed the sea before this. I was familiar with the shipping 
of crews, here, in April and May '73. I think that very few of the 
men originally shipped in the Sunrise, went on her. I went to 
the houses of the men who had shipped; they could not be found. 
The landlords told me that they should not go. Some said, the men 
had run away ; others said you can't have them, and threatened to 
"put a head" on me if I came to their house. As to those who 
actually did go on the ship, they took any thing they could get. 
They got hard men. The combination of landlords induced the men 
to desert: the men themselves would have been glad to go. We 
have no trouble now, with the landlords ; some few of them only 
hang out. 

Capt. Seabury of P. M. S. S. Granada. — I have been on the sea 
since 1835. I have commanded most of the ships in our line. I 
have known about shipping seamen here, under the old system, and 
under the new act. I have found the law to work very well. The 
Commissioner is accomodating. They try to keep our men right, and 
do all we can ask. We have no difficulty under this law. They are 
willing to punish the sailor, if he deserves it. 

As to its work with the sailor, I can hardly judge, but I should 
think it would be a benefit to him. Under it his rights are respected. 
It tends to give the seamen an idea how to understand their just re- 
lations. No seaman can find fault with it. 

The law is no damage to owners or captains, I should say, though 
as to dollars and cents, in shipping matters, I have nothing to do. 

Under the old system, as to paying off, I should suppose that the 
sailor would get his rights; though I am not very familiar with that. 
As to there being more insubordination under the new law, I think 



49 

there is no more, but quite the contrary : the men are more respect- 
ful, now. In paying off, here, a Commissioner's Deputy comes on 
board, and we reship any man we want to. I can't say anything as 
to a new fee. The men come on board more sober, than they used 
to. The Deputies are not arbitrary. I have no difficulty now ; the 
men (sailors) are very courteous now. I should prefer to have the 
law kept in force. As to the frequency of changing men, I don't 
know that there is much alteration. 



The U. S. Shipping Commissioner submitted a large number of 
letters from captains of steam and sailing vessels engaged in trade 
between New York and West Indies, Europe, East Indies, San 
Fraacisco, Panama, South America, &c, &c, who had had personal 
experience under the law, and its administration in this port all ex- 
pressing their satisfaction with both. 



C. 

Letter from Copt. M. B. Ceo well of Ship "Black Hawk," received 

at the U. S. Shipping Commissioners Office, New York, 

Dec. 24th, 1873. 

New York, Dec. 24tb, 1873. 
Mr. C. C. Duncan - , U. S. Shipping Commissioner : 
Dear Sir : — I have learned, with some regret, on my arrival at 
tbis port, from a voyage to San Francisco, and back, that there are 
parties and people in New York, using a great deal of exertion by 
Committee, and otherwise, to break up and overthrow the acts of 
our Government, providing and regulating the shippiag of men, 
serviag as sailors on board American ships, and also rinding a great 
deal of fault with your management, and if my humble services are 
of any use to you, as a shipmaster, you are welcome to them. I 
have done business, now, with your office three times, in succession 
and have received every attention and kindness, that could be given 
by all under your control, both in shipping and paying off my 
crews ; neither have I had an hour's detention, and have had better 
crews by all odds than under' the old regime of shipping. And it 
seems singular that there are people about, in the city, that have 
nothing else to do but to try and do away with this institution, 
which I think is a great benefit to .ship owners, ships and sailors. 
As far as I aai judge, your office is coatrolled ia better order than 
aay oae I have doae busiaess ia, siace the aew shippiag law passed. 
If this will be of aay use to you ia your troubles, I give it freely and 
unbiased without solicitation. 

Yours respectfully, 

Milton B. Crowell, 
Master of Ship Black Hawk. 



50 



At a meeting of the Firemen and Coal Passers' Association of the 
port of New York, held on Saturday evening, November 22nd, 
1873, at No. 73 Washington Street, the following resolutions were 
unanimously adopted. 

Resolved, — That we the bona fide numbers of the Firemen and 
Coal Passers' Associations of the port of New York, do hereby protest 
against, and repudiate, the acts of a certain class, falsely represent- 
ing themselves as members of this Association, and who by resolu- 
tions condemned the Shipping Act of 1872, said parties not being 
members of, and in no wise connected with this Association. 

Resolved, — That we heartily endorse and approve of the Ship- 
ping Act of 1872, being satisfied, from experience, that said Act is be- 
neficial to us, and a protection to our interests — and that we have 
upon many occasions been the recipients of the benefits of said law, 
and that we entirely repudiate the acts of those who participated in 
the procession of the 15th inst. they being non-members, and non- 
representatives of this Association. 

Resolved, — That a Committee of four be appointed to wait on C. C. 
Duncan, the U. S. Shipping Commissioner for the port of New York, 
and tender him a copy of the resolutions as adopted. 

George Hill, Chairman, 38 Greenwich St., 
Francis Corrigan, 
James Harris, 
John Cullen, 

Committee. 




027 331 747 8 



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